order granting in part and denying in part …feb 08, 2011 · kauai beach villas-phase ii, llc,...

IN THE UNITED STATES DISTRICT COURT

FOR THE DISTRICT OF HAWAII

KAUAI BEACH VILLAS-PHASE II,LLC,

Plaintiff,

vs.

COUNTY OF KAUAI, KAUAI COUNTYCOUNCIL, KAUAI PLANNINGDEPARTMENT AND DOE DEFENDANTS1-20,

Defendants._____________________________

))))))))))))))

CIVIL 12-00483 LEK-RLP

ORDER GRANTING IN PART AND DENYING IN PART PLAINTIFF’SMOTION FOR SUMMARY JUDGMENT ON COUNTS II AND III OF THE

COMPLAINT AND GRANTING IN PART AND DENYING IN PART DEFENDANTS’COUNTER MOTION FOR SUMMARY JUDGMENT ON COUNTS II AND III

On March 1, 2013, Plaintiff Kauai Beach Villas - Phase

II, LLC (“KBV”) filed the instant Motion for Summary Judgment on

Counts II and III of the Complaint (“KBV Motion”) and its Concise

Statement of Material Facts in support of the KBV Motion (“KBV

CSOF”). [Dkt. nos. 15, 16.] On May 6, 2013, Defendants County

of Kauaì (“the County”), Kauaì County Council (“the Council”),

and Kauaì Planning Department (“the Planning Department”, all

collectively “Defendants”) filed their Counter Motion for Summary

Judgment on Counts II and III (“Counter Motion”) and their

Concise Statement of Facts (“Defendants’ CSOF”). [Dkt. nos. 18,

19.] KBV filed a joint reply in support of the KBV Motion and

opposition to the Counter Motion (“Reply”) on May 14, 2013.

Case 1:12-cv-00483-LEK-RLP Document 27 Filed 06/28/13 of 48 PageID #: 518

1 The Charter is available to the public through the Countyof Kaua`i website: http://www.kauai.gov/Government/PublicDocuments/tabid/362/Default.aspx. KBV provided relevantsections of the Charter with its KBV CSOF as Exhibit C to theDeclaration of Gregory K. Markham (“Markham Declaration”).

2

[Dkt. no. 23.] Defendants filed a reply in support of the

Counter Motion (“Counter Reply”) on May 21, 2013. [Dkt. no. 24.]

These matters came on for hearing on May 28, 2013. Appearing on

behalf of KBV was Gregory Markham, Esq., and appearing on behalf

of Defendants was Ian Jung, Esq. After careful consideration of

the motions, supporting and opposing memoranda, and the arguments

of counsel, the KBV Motion and Defendants’ Counter Motion are

HEREBY GRANTED IN PART AND DENIED IN PART for the reasons set

forth below.

BACKGROUND

KBV filed the instant action on August 12, 2012 to

challenge: 1) a 2008 amendment to the County of Kaua`i Charter

(“the Charter” or “the County Charter”) that was codified as

Section 3.19; and 2) a 2011 ordinance adopted to implement

Section 3.19 (“Ordinance No. 912”). Section 3.19 provides:1

Implementation of the General Plan

A. The power to process and to issue anyzoning, use, subdivision, or variance permit formore than one transient accommodation unit shallbe vested in and exercisable exclusively by thecouncil. As used in this Section, “transientaccommodation unit” shall mean an accommodationunit or a portion thereof in a hotel, timesharefacility, resort condominium, fractional ownershipfacility, vacation rental unit or other similarly-


3

used dwelling that is rented or used by one ormore persons for whom such accommodation unit isnot the person’s primary residence under theInternal Revenue Code.

B. Any applicant seeking the issuance of azoning, use, subdivision or variance permit formore than one accommodation unit shall certify tothe planning department whether any use of theunits as a transient accommodation unit isprojected by the applicant. Prior to granting anysuch permit for a transient accommodation unit,the council shall conduct a public hearing andmake a finding that granting such permit would beconsistent with the planning growth range of thegeneral plan and in the best interest of thecounty and its people. Approval of any suchapplication shall require a favorable vote of twothirds (2/3) of the entire membership of thecouncil. Appeals of any decision by the councilrelating to such permits must be instituted in thecircuit court within thirty (30) days afterentrance of the final decision of the council.

C. The council may by ordinance authorizethe planning commission to process and issue suchpermits, or certain of them, on terms andconditions as the council may deem advisable, onlyupon the council’s enactment of a rate of growthordinance that limits the rate of increase in thenumber of transient accommodation units in thecounty to no greater than one-and-one-half percent(1.5%) per annum on a multi-year average basis, orsuch growth rate that is within the planninggrowth range of a future general plan adoptedpursuant to Section 14.08.

D. The council shall adopt such ordinances,laws, rules and regulations as are necessary tocarry out the terms and intent of this amendmentto the Charter.

E. If any provision of this amendment shallbe held by a final order of a court of competentjurisdiction to be invalid, all of the other termsof the amendment shall remain in full force andeffect. (Amended 2008)


2 The Petition alleged that the County’s average dailyvisitor count was growing too rapidly and that an excessivenumber of visitors negatively impacted the residents of theCounty. [Markham Decl., Exh. B (Petition) at 2.]

3 The Election Guide for the Proposed Amendment is attached(continued...)

4

(Emphases added.)

KBV owns real property on the Hanamāùlu coast on the

island of Kauaì (“the Property”). The Kauaì General Plan (“the

General Plan”) designates the Property for resort development,

and this designation has been consistent since 1977. A portion

of the Property is located in an urban land use district. [KBV

CSOF Nos. 5-7.] Appendix C to the General Plan states that the

Property is planned for resort use and is proposed for resort

zoning with an allowable density of 680 multi-family units or

1,360 hotel units. [KBV CSOF No. 8.]

In 2008, a group called the Coalition for Responsible

Government (“CRG”) drafted and circulated a Petition proposing to

amend the Charter to designate various uses of land under the

term “transient accommodation unit” (“TAU”) and to establish

various requirements for applicants seeking permits for more than

one TAU (“the Proposed Amendment”).2 The Proposed Amendment was

presented to the voters on the 2008 general election ballot, and

the County also made the “2008 Charter Amendment Proposals:

Ballot Questions, Proposed Text Amendments, & Pros/Cons”

(“Election Guide”) available to voters.3 [KBV CSOF Nos. 9-10,


3(...continued)to the KBV CSOF as Exhibit D to the Markham Declaration.

5

12.] The Proposed Amendment was adopted in the 2008 general

election and codified as Section 3.19. Section 3.19 is

substantively identical to the amendment suggested in CRG’s

Petition. [KBV CSOF Nos. 14, 15; Defs.’ CSOF, pg. 2, No. 14.]

Subsequently, the Council adopted Ordinance No. 912,

the purpose of which was “to authorize the Planning Commission of

the County of Kaua`i to process and issue zoning permits, use

permits, subdivision approvals, and various permits for” TAUs

pursuant to Section 3.19. [Markham Decl., Exh. J (Ordinance No.

912).] Ordinance No. 912 also establishes the growth rate. [KBV

CSOF No. 19.]

In its Complaint, KBV states that it and its

predecessors have spent substantial sums to “develop visitor

accommodation units on the [P]roperty as part of a larger resort

project.” [Complaint at ¶ 3.] KBV alleges that the purpose of

Section 3.19 - to enforce a “planning growth range” for visitor

accommodation units - is inconsistent with the General Plan,

which never intended to limit the number of visitor accommodation

units. According to KBV, the Planning Department has

acknowledged this inconsistency. The County, however, failed to

explain this inconsistency to the public when it placed the

Proposed Amendment on the ballot, and the County inaccurately


6

described the amendment as implementing the General Plan. [Id.

at ¶¶ 4-6, 8.] KBV argues that Section 3.19 has a

disproportionate effect on visitors to Kaua`i and on part-time

residents of Kaua`i because it will substantially reduce the

number of units available to them and make the available units

substantially more expensive. [Id. at ¶ 10.]

Ordinance No. 912 creates various exemptions to the TAU

limit, but KBV’s Property is not exempt. Between January 1, 2012

and December 31, 2016, the County may only approve 252 new, non-

exempt TAUs. [Id. at ¶¶ 13-15.] KBV argues that, even if it

constructed all 252 new units, that number “is substantially less

than the number of visitor accommodation units planned for the

[P]roperty in the general plan and would be insufficient to

support the development of the [P]roperty as part of the larger

resort project.” [Id. at ¶ 16.] Thus, KBV contends that Section

3.19 and Ordinance No. 912 prevent KBV from developing its

Property as contemplated by the General Plan, and this has a

substantial negative impact on the value and use of the Property.

[Id. at ¶¶ 17-18, 20.]

KBV argues that Defendants have not advanced a

legitimate state interest in these actions, and therefore Section

3.19 and Ordinance No. 912 violate the Fourteenth Amendment.

[Id. at ¶¶ 20-21.] The Complaint also alleges that Section 3.19

and Ordinance No. 912 violate state law because the County did


7

not follow the proper procedures in enacting them and because the

County failed to properly describe the Proposed Amendment in the

voter education materials. [Id. at ¶¶ 22-23.]

The Complaint states that, on April 26, 2012, KBV

applied to the Planning Department Director for a 400-unit

exemption on the Property from the TAU cap and certification

process. The Director denied the application, and KBV has

appealed. KBV argues that the appeal is futile and that this

Court should immediately decide KBV’s facial challenges to

Section 3.19 and Ordinance No. 912 without regard to the outcome

of the appeal. [Id. at ¶¶ 100-03.] The Complaint alleges that

Section 3.19 and Ordinance No. 912 have injured KBV because they

interfere with its reasonable investment expectations for the

Property. KBV seeks declaratory relief that will end the

controversy giving rise to this case. [Id. at ¶¶ 105-13.]

The Complaint alleges the following claims: a 42 U.S.C.

§ 1983 claim for denial of substantive due process (“Count I”);

violation of Haw. Rev. Stat. § 46-4, the Zoning Enabling Act

(“Count II”); and violation of Charter § 22.07.D. (“Count III”).

The Complaint seeks the following relief: a declaratory judgment

that Section 3.19 and Ordinance No. 912 are unconstitutional and

invalid on their face; an injunction against the enforcement of

Section 3.19 and Ordinance No. 912; fees and costs; and any other

appropriate relief.


8

II. KBV Motion

The KBV Motion seeks summary judgment on Count II and

Count III. The KBV Motion does not address Count I. [Mem. in

Supp. of KBV Motion at 3-4 & n.2.]

KBV emphasizes that counties may only exercise the

powers that the State legislature has designated to them.

Further, the State legislature may enact laws regarding matters

of statewide concern, even if they are in an area that is

typically reserved to the counties. In matters of statewide

concern, such as land use, state statutes override contrary

county charters and ordinances. [Id. at 5-6 (some citations

omitted) (citing Haw. Const. art. VIII, § 6).]

Within the framework of the four zoning districts

(urban, rural, agricultural, and conservation) established by the

State Land Use Commission, the Zoning Enabling Act (Haw. Rev.

Stat. § 46-4) gives the counties certain zoning powers. [Id. at

6 (some citations omitted) (citing Haw. Rev. Stat. § 205-2(a)).]

KBV emphasizes that a county must exercise its zoning power by

ordinance and within the framework of a comprehensive general

plan. Properly executed, the County may exercise its zoning

power as to the subject matter of Section 3.19 and Ordinance No.

912, but regulations that do not comply with § 46-4 are void.

[Id. at 7-9.]


9

The County’s General Plan states that “[t]he visitor

industry is the most significant economic force on Kaua`i” and

“the number of visitors staying on Kaua`i is the single most

important variable in the economy.” [General Plan §§ 4.2.1,

4.2.2.2.] Appendix C to the General Plan includes an inventory

of planned and proposed resort hotel and condominium projects.

The General Plan recognizes that the visitor industry will grow,

requiring improvements to infrastructure and public facilities.

[Id. § 1.6.2.3.] As part of the 2000 update to the General Plan,

the Planning Department developed a forecast of the number of

anticipated visitors per day in 2020. The projection for 2020

was between 24,000 and 28,000 visitors per day. The purpose of

the forecast was to assist in the long-range planning of County

infrastructure and services. The General Plan states that the

forecast is not intended to be either a target or a growth limit,

and the forecast should be revisited either when new information

is available or every five years. [Id. §§ 1.6.2.1, 1.6.2.4.]

The General Plan also recognizes that visitor growth is subject

to many variables, including the number and quality of available

visitor units. [Id. § 4.2.2.1.]

KBV points out that the Election Guide and the ballot

question characterized the Proposed Amendment as an

“implementation” of the General Plan and stated that it would

limit TAUs to amounts consistent with the projections in the


4 Exhibit D to the Markham Declaration consists of excerptsfrom the Election Guide. [Markham Decl. at ¶ 5.] KBV did notprovide a copy of the election ballot, but Defendants did. Seeinfra n.9.

5 Exhibit E to the Markham Declaration is a County PlanningDepartment Staff Report for a February 8, 2011 hearing regardingproposed zoning amendments to Kaua`i County Code, Chapter 8, toimplement Section 3.19. [2/8/11 Staff Report at 1.]

10

current and future General Plans. Further, it would prevent the

Planning Commission from approving more TAUs than projected in

the General Plans. [Mem. in Supp. of KBV Motion at 14 (citing

Exh. D (Election Guide4) at 10, 12).] KBV emphasizes that the

Planning Department has admitted that Section 3.19 is

inconsistent with the General Plan and that the projections in

the General Plan are not targets or limits. [Id. at 15-16

(citing Exh. E (2/8/11 Staff Report5) at 3, 4).] The Planning

Department also recognized that “[a] growth rate cap of 1.5% that

is based on the findings of a visitor unit demand study conducted

in 1998 does not account for recent and substantial growth in the

visitor unit inventory over the past decade.” [2/8/11 Staff

Report at 5.] KBV emphasizes that the Election Guide did not

include this information. [Mem. in Supp. of KBV Motion at 16.]

KBV states that Ordinance No. 912 authorizes the

Planning Commission to process and issue subdivision approvals

and various types of permits for TAUs pursuant to the terms of

Section 3.19. Ordinance No. 912 limits the Planning Commission

to the issuance of 252 TAU certificates between January 1, 2012


11

and December 31, 2016. [Id. at 16-17 (citing Exh. K (2/28/12

Commission Meeting Minutes) at 5).] The Planning Department has

also admitted that the limits in Ordinance No. 912 are not

consistent with the General Plan. [Markham Decl., Exh. L

(5/24/11 Suppl. #2 to Staff Report) at 3.]

KBV argues that Section 3.19 is invalid because: the

counties’ § 46-4 powers cannot be exercised by initiative; the

counties’ § 46-4 powers may only be exercised by ordinance; and

Section 3.19 is a land use regulation that could only be

exercised through the County’s § 46-4 powers. Section 3.19

therefore exceeds the powers that the State of Hawai`i granted to

the County, and therefore Section 3.19 is invalid on its face.

[Mem. in Supp. of KBV Motion at 18.]

The seminal case invalidating county land use voter

initiatives is Kaiser Hawaii Kai Development Co. v. City & County

of Honolulu, 70 Haw. 480, 777 P.2d 244 (1989). [Id. at 18-21.]

KBV emphasizes that, as recognized in Kaiser Hawaii Kai,

“initiatives cannot take into account the myriad of different and

often competing values and technical considerations that are

developed, vetted and balanced through long-range, comprehensive

planning” and such “‘[s]poradic attacks’” allow voters to make

single zoning decisions “‘without any overriding concept[.]’”

[Id. at 28-29 (quoting Kaiser Hawaii Kai, 777 P.2d at 247).]


12

KBV argues that a county charter is distinct from

county ordinances, and therefore charter amendments cannot serve

as legislation in place of ordinances. [Id. at 21-22.]

Moreover, § 46-4 expressly states that the counties shall

exercise their land use powers “by ordinance”, and § 14.10 of the

County Charter states that the County Council shall enact “zoning

ordinances”. [Id. at 23.]

KBV points out that Section 3.19 creates and regulates

a new land use classification, the TAU. According to KBV, no

other section in the County Charter creates and regulates a

specific land use, imposes specific requirements for a land use,

or limits the growth of a specific land use to a range expressed

in the General Plan. KBV also emphasizes that Section 3.19 does

not apply to any other types of land use; it only applies to the

newly created TAU classification. Thus, KBV argues that Section

3.19 is a land use regulation which exercises zoning powers set

forth in § 46-4, and which is akin to County ordinances governing

“transient vacation rentals”, “visitor destination areas”, or

timeshare units. Since § 46-4 addresses matters of statewide

concern, it is superior to Section 3.19, and § 46-4 must control.

[Id. at 25, 27-28.]

KBV also argues that a ballot question must be clear

and cannot mislead or advocate a position. Further, the Charter

requires that a ballot for a measure proposed by initiative must


13

have an objective summary of the measure. [Id. at 29 (citing

Exh. C (Charter) § 22.07.D.).] KBV argues that, in the instant

case, the Election Guide did not include an objective summary of

the Proposed Amendment and misleadingly stated that the amendment

would implement the General Plan and would restore visitor growth

to levels required by the General Plan. [Id. at 33.]

The Election Guide states, in pertinent part:

RELATING TO IMPLEMENTATION OF THE GENERAL PLAN(Proposed by Citizens’ Petition)

BALLOT QUESTION

“Shall Article III of the Charter of the County ofKauai be amended by adding new sections to read asfollows:

SECTION 1

Article III of the Charter of the County of Kauaiis hereby amended by adding a new Section toArticle III to read as follows:

Implementation of the General Plan. . . .

BACKGROUND

. . . [T]he County Charter does not require thenumber of “transient accommodation units” asdefined in the proposed Charter amendment approvedby the County be consistent with the GeneralPlan’s growth scenarios.

EXPLANATION OF PROPOSED AMENDMENT

. . . .

. . . The annual number of “transientaccommodation unit” approvals allowed would belimited to a number calculated from the year 2020projections of overall demand for visitor units


14

contained in the 2000 General Plan, or within thegrowth ranges of future General Plans that areadopted by the County Council.

. . . .

PROS AND CONS

Pros:

. . . .

• Removes the ability of the PlanningCommission, a body whose members areappointed by the Mayor and confirmed by theCounty Council, to approve more “transientaccommodation units” (as defined in theproposed Charter amendment) than would beconsistent with the projections in presentand future General Plans.

• The approval rate over the past 8 years forhotels, timeshares and other transientaccommodations has been far greater than theprojections in the 2000 General Plan. Requiring that growth be paced consistentlywith General Plan growth scenarios could helpto ensure that such growth is consistent withKauai’s infrastructure, housing stock,employment needs and desired character.

[Markham Decl., Exh. D at 10-12.]

KBV argues that the Election Guide failed to provide a

non-partisan, objective summary of the Proposed Amendment, in

particular because it failed to inform voters that: 1) the

projections in the General Plan are not targets or growth limits;

2) the projections are subject to periodic revision; and 3) the

Proposed Amendment is inconsistent with the General Plan’s policy

of visitor unit growth and resort growth. Further, the Election

Guide does not state that the primary effect of the Proposed


6 Defendants submitted their exhibits with their CounterMotion instead of with Defendants’ CSOF.

15

Amendment would be to restrict the development of TAUs in a

matter that the General Plan did not intend. According to KBV,

the Election Guide misled voters into believing that the Proposed

Amendment would be in conformity with the General Plan. KBV

therefore argues that Section 3.19 is also void on its face

because it violates County Charter § 22.07.D. [Mem. in Supp. of

KBV Motion at 34-36.]

KBV therefore urges this Court to grant KBV summary

judgment on Count II and Count III.

III. Counter Motion

In the Counter Motion, Defendants assert that “the

nature of this case fundamentally centers on a shift of

authority.” [Mem. in Supp. of Counter Motion at 3.] Section

3.19 shifts the authority to issue permits for TAUs from the

Planning Commission to the Council. [Id.]

On September 3, 2008, CRG, the group that initiated the

Petition, submitted proposed language for the Election Guide’s

description of the Proposed Amendment. [Defs.’ CSOF No. 3;

Counter Motion, Decl. of Counsel (“Defs.’ Counsel Decl.”), Exh. 3

(letter to County Clerk from CRG).6] The Office of the County

Clerk responded that CRG’s proposed ballot question did not

accurately represent the text of the Proposed Amendment and that


7 The General Election ballot states, in pertinent part:

Kauai: Relating to the Implementation of theGeneral Plan

“Shall Article III of the Charter of the County ofKauai be amended by adding new sections to read asfollows:

[full text of Proposed Amendment]

[Defs.’ Counsel Decl., Exh. 7 at 1 (emphasis in original).]

16

proposed voter education materials were solely in the County

Clerk’s discretion. [Defs.’ CSOF No. 4; Defs.’ Counsel Decl.,

Exh. 4 (letter dated 9/3/08 to CRG from the Office of the County

Clerk).]

On September 5, 2008, the County Clerk submitted the

ballot question for the Proposed Amendment to the Chief Elections

Official. The County Clerk did not use CRG’s proposal. [Defs.’

CSOF No. 5; Defs.’ Counsel Decl., Exh. 5 (9/5/08 letter).]

Defendants assert that the County Clerk modified the ballot

question to be objective and to include the entire text of the

Proposed Amendment. [Mem. in Supp. of Counter Motion at 5.] CRG

sent a letter to the County Clerk insisting upon the use of its

ballot question and threatening legal action. [Defs.’ CSOF No.

6; Defs.’ Counsel Decl., Exh. 6 (9/9/08 letter).] The ballots

were ultimately printed using the County Clerk’s September 5,

2008 submission. [Defs.’ CSOF No. 7; Defs.’ Counsel Decl., Exh.

7 (11/4/08 General Election ballot).7] On October 2, 2008, CRG


17

submitted information to the County Clerk to be included in the

voter education material. [Defs.’ CSOF No. 8; Defs.’ Counsel

Decl., Exh. 8 (10/2/08 e-mail with attachment).]

Section 3.19 vests the power over TAU permits in the

Council, except that the Council would return power over the

process to the Planning Commission upon the enactment of an

ordinance establishing a growth rate for TAUs that was within the

General Plan’s growth range. The Council elected that option and

enacted Ordinance No. 912, which took effect on November 21,

2011. It established an allocation program for TAU Certificates

(“TAUC”). Where a project involves more than one TAU, the

development and use of the TAUs require a TAUC as a prerequisite

to obtaining a permit or a subdivision approval. Ordinance No.

912 also establishes a growth rate for TAUs over a five-year

period. The first five-year Allocation Cycle began on January 1,

2012. [Mem. in Supp. of Counter Motion at 6-7.]

Defendants describe the allocation process set forth in

Kaua`i County Code, Chapter 8, Comprehensive Zoning Ordinance

(“CZO”) § 8-28.3 and Ordinance No. 912, and they agree with KBV

that 252 TAUCs are available for Allocation Cycle #1, which runs

from January 1, 2012 to December 31, 2016. [Id. at 8-9 (some

citations omitted) (citing Defs.’ Counsel Decl., Exh. 11 (County

Planning Department Director’s Report for 2/28/12 hearing

regarding the Transient Accommodation Unit Certificate Allocation


18

Program)).] The Planning Commission accepts applications for

TAUCs in chronological order. A TAUC application must be

submitted with a complete application for the permit or

subdivision approval sought for the project. Any available TAUCs

not issued by December 16, 2016 will expire. The Planning

Commission has not received any applications for TAUCs, nor has

it issued any. [Id. at 9 (citing Markham Decl., Exh. J).]

Defendants emphasize that there are two types of

exemptions to the TAUC requirement, one for a “Permitted Project”

and one for a “Eligible Resort Project”. They also emphasize

that, pursuant to CZO § 8-24.4(c), there is an anti-moratorium

provision that will take effect if all TAUCs are allocated in any

five-year cycle. [Id. at 9-10.]

As to KBV, Defendants acknowledge that the Property has

a State Land Use District “urban” classification with a Kaua`i

County General Plan “resort” designation. Defendants, however,

state that, pursuant to County ordinance, the Property is within

the “County Agriculture and Open Districts”, not the “Visitor

Destination Area”. [Id. at 10 (citing Defs.’ Counsel Decl., Exh.

12 (maps fo Kauai Beach Villas - Phase II Zoning Districts and

General Plan Designation)).] Defendants point out that

representatives of KBV attended Council meetings during the

debate about the TAU legislation, and they submitted testimony in

strong support of the precursor bill to Ordinance No. 912. The


19

testimony also argued in favor allowing projects with the General

Plan “Resort” designation to qualify for an exemption. [Id. at

10-11 (citing Defs.’ Counsel Decl., Exh. 13 (testimony dated

9/28/11 to the Council by Lynn McCrory, President of PAHIO

Development, Inc., regarding Bill No. 2410 Relating to the

Permitting Process for Transient Accommodation Units)).] The

Council ultimately decided to limit the exemptions to projects

that were already zoned for resort use and that had expended

substantial sums. [Id. at 11.]

Defendants first argue that this Court should stay the

litigation of Count II and Count III pursuant to the abstention

doctrine set forth in Railroad Commission of Texas v. Pullman

Co., 312 U.S. 496 (1941). Although abstention is the exception

rather than the rule, federal courts have often invoked the

Pullman abstention doctrine to refrain from adjudicating § 1983

claims regarding land use issues. [Id. at 11-12 (citing Colorado

River Water Conserv. Dist. v. United States, 424 U.S. 800, 813

(1976)).]

Defendants argue that KBV is attempting to improperly

expand the holding in Kaiser Hawaii Kai and that there are two

unresolved issues of state law in this case. [Id. at 13-14.]

Defendants characterize those issues as follows:

•“[O]nce the state legislature delegates certain zoning power tospecific agencies within the county government may acitizens’ petition then reallocate the power to zone to adifferent authority within the county[?]”


20

•“[W]hether the Council, as a legislative body, can utilize TAUgrowth projections (i.e. ‘Projections to 2020’) in theGeneral Plan that were not necessarily intended to be‘targets’ or ‘limits’, but to guide enactment of a slowgrowth ordinance to supersede the General Plan ordinance andimplement the ‘Projections to 2020’ as contemplated in theGeneral Plan[?]”

[Id. at 14.] Defendants ask this Court to stay the case until

KBV resolves these issues in the proper state forum. After the

state forum decides these issues, this Court will be able to

determine whether the federal question in Count I has been

narrowed or become moot. [Id.]

Defendants argue that staying the case under the

Pullman abstention doctrine will not prejudice KBV because,

during the pendency of the litigation, KBV can begin the process

of applying for re-zoning of the Property. If re-zoning is

granted, KBV can apply for a TAUC under Ordinance No. 912 or, if

all of the permits for the current five-year cycle become

accounted for, KBV can petition for an allocation under CZO § 8-

24.4(c). [Id. at 14-15.]

Defendants next argue that this Court should not rule

upon Count II and Count III until it rules upon Count I, the lone

federal claim. Defendants argue that Count I is a weak claim

because of KBV’s failure to exhaust state administrative

remedies. Defendants emphasize that KBV has not been denied

development rights based on the process established in Section

3.19 and Ordinance No. 912, and Defendants argue that KBV cannot


21

meet the “shock the conscience” standard which would excuse KBV’s

failure to go through the contested process before challenging

it. [Id. at 15-18.]

Moreover, KBV and Defendants are engaged in litigation

before the Planning Commission’s hearings officer regarding the

denial of an exemption pursuant to Ordinance No. 912. If the

hearings officer denies the exemption, KBV can file an agency

appeal in state circuit court pursuant to Haw. Rev. Stat. Chapter

91. Defendants also reiterate that KBV has re-zoning and TAUC

processes available to it. Defendants argue that the mere fact

that the Property has a General Plan resort designation and a

State Land Use Commission urban district classification does not

create an entitlement for KBV to develop the Property as a

resort. Defendants contend that KBV’s arguments as to the effect

of Section 3.19 and Ordinance No. 912 on the Property are mere

conjecture at this stage. Defendants therefore urge the Court to

reserve ruling on Counts II and III until it rules upon Count I.

[Id. at 18-19.]

Defendants next argue that Section 3.19 does not

violate § 46-4 and that Kaiser Hawaii Kai does not apply. In

Kaiser Hawaii Kai, the Hawai`i Supreme Court struck down a zoning

initiative that re-zoned two specific tracts of land. In the

instant case, Section 3.19 is not aimed at specific properties;

it creates a new process for TAUs generally. [Id. at 19-20.]


22

Defendants contend that Section 3.19 is a permissible delegation

of power because it merely reallocates powers that the State

granted to the County from one County subdivision to another.

Thus, it was within the County’s power to determine the structure

and organization of its executive, legislative, and

administrative offices. Kaiser Hawaii Kai does not apply because

the Hawai`i Supreme Court held that § 46-4(a) does not relate to

a county’s executive, legislative, and administrative structure

and organization. [Id. at 24-25.]

Defendants emphasize that the General Plan is a policy

document that the Council adopts via ordinance. It provides

guidelines for future planning actions. Defendants argue that,

although the General Plan anticipated visitor growth, nothing

prevents the Council from adopting slow growth policies to

respond to the projections in the General Plan. In other words,

Section 3.19 and Ordinance No. 912 are the manner in which the

Council has responded to the growth projections in the General

Plan. [Id. at 26-27.]

If this Court agrees with KBV’s interpretation of

Kaiser Hawaii Kai, Defendants argue that Section 3.19’s

severability clause controls. If this Court rules that the

portion of Section 3.19 addressing the growth rate is invalid,

the remainder of Section 3.19 remains in force, and KBV would be

required to request TAU permits from the Council. [Id. at 27-


23

28.]

Defendants also argue that they are entitled to summary

judgment because KBV failed to raise a timely challenge to the

ballot question, the text of the Proposed Amended, or the

Election Guide. Further, KBV has not alleged that any fraud or

misconduct prevented it from bringing a timely challenge. [Id.

at 28-29.]

As to KBV’s argument that the enactment of Section 3.19

violated County Charter § 22.07, Defendants argue that § 22.07 is

inapplicable because it addresses amendments to ordinances.

Section 3.19 was properly enacted pursuant to the requirements in

County Charter § 24.01, which addresses amendments to the County

Charter. [Id. at 29-31.] Further, even if the requirements for

the amendment of ordinances did apply, Defendants argue that the

Election Guide was a fair portrayal of the Proposed Amendment.

Defendants assert that the instant case is most closely analogous

to Kahalekai v. Doi, 60 Haw. 324, 333, 590 P.2d 543, 550 (1979),

which dealt with the ratification of a constitutional amendment.

The Hawai`i Supreme Court stated that a constitutional amendment

ratified by the electorate must be upheld unless the challenging

party carries its burden of proving that the amendment is invalid

beyond a reasonable doubt. Further, every reasonable presumption

must be made in favor of the ratified amendment. Defendants

argue that the ballot information associated with the Proposed


24

Amendment was sufficient pursuant to Kahalekai and similar cases

outside of Hawai`i. [Id. at 31-33.] Defendants assert that the

ballot question was objective, and Defendants emphasize that

voters were provided with the entire text of the Proposed

Amendment. Thus, there was no danger of uncertainty or

ambiguity. Defendants argue that any allegedly misleading

information in the Election Guide does not invalidate what was on

the actual ballot. [Id. at 34.] Defendants emphasize that,

pursuant to Haw. Admin. R. § 3-51-11(e), voter information

pamphlets are not mandatory, and Defendants argue that the

Election Guide was neither deceptive nor misleading. [Id. at 35-

38.]

Defendants therefore urge this Court to abstain from

ruling on Counts II and III but, if this Court is inclined to

rule, Defendants argue that this Court should grant summary

judgment on Counts II and III to Defendants.

IV. KBV Reply

In the KBV Reply, KBV points out that Defendants did

not follow the proper procedure for filing a joint counter motion

and memorandum in opposition. KBV argues that this Court should

only consider the portions of the Counter Motion addressing the

KBV Motion, and this Court should strike the portions that raise

different claims for relief. They also argue that this Court

should not allow Defendants to file a reply in support of the


25

Counter Motion. [KBV Reply at 1 n.2 (citing Local Rule 7.9).]

KBV also argues that, because Defendants did not file a counter

statement of facts, this Court should deem all facts in the KBV

CSOF admitted. [Id. at 2 n.3.]

KBV argues that the language of Section 3.19 clearly

shows that it did more than realign administrative protocol and

shift power; it exercised the County’s zoning power by

establishing regulations for a newly created land use

classification. KBV argues that only § 46-4 grants counties the

power to take such actions, and Section 3.19 is void because it

did not comply with § 46-4. KBV also emphasizes that § 46-4 does

not address the County’s executive, legislative, and

administrative structure and organization. [Id. at 2-5.] KBV

reiterates its argument that Section 3.19 is an invalid ballot

box regulation under Kaiser Hawaii Kai. KBV acknowledges that

there are some factual distinctions between the instant case and

Kaiser Hawaii Kai, but KBV argues that those distinctions do not

render Kaiser Hawaii Kai inapplicable. [Id. at 19-20.] KBV also

argues that Defendants’ severability argument is nonsensical;

deleting one sentence from Section 3.19.B. would not bring the

remainder of the amendment into compliance with § 46-4. [Id. at

22.]

As to the Election Guide, KBV first argues that

Defendants’ laches defense fails because there is no evidence


26

that KBV had notice of the Election Guide prior to the election.

KBV reiterates that the Election Guide (and the ballot itself)

was misleading because the Proposed Amendment did not implement

the General Plan; it is inconsistent with the General Plan. [Id.

at 5 & n.5.] KBV points out that Defendants did not address the

Planning Department’s admission that Section 3.19 is inconsistent

with the General Plan. KBV also argues that the mere fact that

the full text of the Proposed Amendment was included on the

ballot does not negate the misleading effect of the title, which

asserted that the Proposed Amendment implemented the General

Plan. [Id. at 24-25.]

As to Defendants’ arguments regarding abstention, KBV

states that Defendants could have moved for summary judgment on

Count I at an earlier date, but they did not do so. KBV states

that it has not moved for summary judgment on Count I because of

factual issues that must be resolved at trial. [Id. at 6.]

Moreover, federal law does not require courts to rule on the

merits of a federal claim before addressing pendent state law

claims. In fact, deciding pendent state law claims first is

preferable if it will obviate the need to decide a constitutional

question. [Id.]

KBV asserts that Pullman abstention is not warranted

because Hawai`i law, namely § 46-4 and Kaiser Hawaii Kai, is

clear and, even if the Hawai`i courts have not addressed the


27

specific issues in this case, this Court can confidently predict

how the Hawai`i courts would decide the issues based on the well-

settled law. If this Court believes there are unsettled state

law issues, KBV urges this Court to certify a question to the

Hawai`i Supreme Court instead of invoking Pullman abstention.

[Id. at 6-7, 12.] In addition, KBV argues that Defendants could

have filed a Pullman abstention motion anytime after the filing

of the Complaint, but they did not do so until now. KBV asks

this Court to disregard Defendants’ abstention argument because

they failed to raise it in a timely manner. [Id. at 10.]

KBV therefore urges this Court to grant the KBV Motion.

V. Counter Reply

In their Counter Reply, Defendants first argue that

their Counter Motion complies with Local Rule 7.9 because it

combines their opposition to the KBV Motion with their Counter

Motion, and the Counter Motion asserts a valid equitable defense

to the issues in the KBV Motion. [Counter Reply at 5-7.]

As to the abstention issue, Defendants emphasize that

the matters addressed in the KBV Motion are local issues, and

Defendants reiterate that abstention is appropriate. Although

they acknowledge that this Court can address the state law claims

through supplemental jurisdiction, Defendants argue that this

Court should decline to do so. In the alternative, Defendants

would be in favor of the certification of key issues to the


28

Hawai`i Supreme Court, and they suggest that the parties submit

proposed questions to this Court. [Id. at 9-11.] If this Court

is not inclined either to invoke the Pullman abstention doctrine

or to certify a question, Defendants argue that this Court should

schedule a hearing on Count I and allow supplemental briefing,

primarily on the ripeness of that claim. Defendants urge this

Court not to address the merits of Counts II and III until it

rules on Count I. [Id. at 11-14.]

As to the merits of Counts II and III, Defendants

reiterate that Section 3.19 was a permissible shift of authority

within the County, and they argue that Section 3.19 does not

create a new land use classification. According to Defendants,

it merely narrows the scope of the permits that the Council has

the authority to issue, and therefore it was a proper exercise of

the County’s control over its executive, legislative, and

administrative structure. [Id. at 14-16.]

Defendants contest KBV’s claim that it did not have

notice of the Proposed Amendment, which was a matter of public

record. Defendants argue that KBV cannot now allege any

irregularities in the election process because KBV did not bring

a timely challenge to the election results. [Id. at 16-17.]

Defendants next reiterate their position that the Election Guide

was a fair portrayal of the Proposed Amendment, and they argue

that KBV failed to prove that the Proposed Amendment was invalid


29

beyond a reasonable doubt. [Id. at 17-20.]

Defendants therefore urge this Court to grant the

Counter Motion and grant summary judgment in Defendants’ favor as

to Counts II and III.

STANDARD

The standard for summary judgment is well-known to the

parties and this Court and does not bear repeating here. See,

e.g., Rodriguez v. Gen. Dynamics Armament & Technical Prods.,

Inc., 696 F. Supp. 2d 1163, 1176 (D. Hawai`i 2010).

DISCUSSION

I. Procedural Rulings

A. Scope of the Counter Motion

This Court does not construe the Counter Motion as

seeking any ruling as to Count I because the KBV Motion does not

address Count I. See Local Rule LR7.9 (“Any motion raising the

same subject matter as an original motion may be filed by the

responding party together with the party’s opposition and may be

noticed for hearing on the same date as the original motion[.]”

(emphasis added)). So construed, Defendants’ Counter Motion

complies with Local Rule 7.9, and Defendants properly filed the

Counter Reply pursuant to Local Rule 7.9. To the extent that KBV

asks this Court to strike or disregard any portion of the Counter

Motion or the Counter Reply, KBV’s request is DENIED. This Court

also DENIES Defendants’ request that this Court reserve ruling on


30

Counts II and III until the parties submit briefing and this

Court rules on Count I. Even if this Court dismissed Count I

before ruling on the merits of Counts II and III, this Court

would have the discretion to exercise supplemental jurisdiction

over Counts II and III. See, e.g., McMillan v. Boy Scouts of Am.

- Aloha Council, Civil No. 11–00430 SOM–BMK, 2012 WL 2282539, at

*11 (D. Hawai`i June 15, 2012).

B. Defendants’ CSOF

Defendants’ CSOF lists KBV CSOF number 14 as a “Non-

Material Disputed Fact”. Local Rule 56.1(g) states: “For

purposes of a motion for summary judgment, material facts set

forth in the moving party’s concise statement will be deemed

admitted unless controverted by a separate concise statement of

the opposing party.” This Court finds that Defendants failed to

comply with Local Rule 56.1(g) because they did not dispute any

item in the KBV CSOF in a separate, responsive statement of

facts. This Court therefore DEEMS the material statements of

fact set forth in the KBV CSOF to be ADMITTED.

In addition, Local Rule 56.1(h) states: “Affidavits or

declarations setting forth facts and/or authenticating exhibits,

as well as exhibits themselves, shall only be attached to the

concise statement. Supplemental affidavits and declarations may

only be submitted with leave of court.” Defendants’ CSOF does

not include any affidavits, declarations, or exhibits. Instead,


8 In light of the parties’ stipulation, this Court will notdiscuss the arguments in the moving papers regarding theadmissibility of the exhibits.

31

Defendants submitted a declaration of counsel and fifteen

exhibits attached to the Counter Motion. Insofar as Defendants

did not comply with Local Rule 56.1(h), this Court ordinarily

would not consider Defendants’ documents. At the hearing on the

KBV Motion and the Counter Motion, however, the parties confirmed

that they have stipulated to the authenticity of both KBV’s

exhibits and Defendants’ exhibits.8 This Court will therefore

consider Defendants’ exhibits in spite of Defendants’ failure to

comply with Local Rule 56.1(h).

II. Abstention & Certification

Before turning to the merits of Count II and Count III,

this Court must address Defendants’ argument that this Court

should defer ruling on the merits of Count II and Count III

pursuant to the Pullman abstention doctrine. This district court

has described the Pullman abstention doctrine as follows:

“The Pullman abstention doctrine allows afederal court to postpone the exercise of federaljurisdiction when ‘a federal constitutional issue. . . might be mooted or presented in a differentposture by a state court determination ofpertinent state law.’” VH Prop. [Corp. v. City ofRancho Palos Verdes], 622 F. Supp. [2d 958,] 962[(C.D. Cal. 2009)] (quoting Pearl Inv. Co. v. Cityand Cnty. of San Francisco, 774 F.2d 1460, 1462(9th Cir. 1985), and C–Y Dev. Co. v. City ofRedlands, 703 F.2d 375, 377 (9th Cir. 1983)). Pullman abstention is an “equitable doctrine thatallows federal courts to refrain from deciding


32

sensitive federal constitutional questions whenstate law issues may moot or narrow theconstitutional questions.” San Remo Hotel v. Cityand Cnty. of San Francisco, 145 F.3d 1095, 1104(9th Cir. 1998). It is also a discretionarydoctrine, which flows from the court’s equitypowers. Potrero Hills Landfill, Inc. v. Cnty. ofSolano, 657 F.3d 876, 888 (9th Cir. 2011) (citingBaggett v. Bullitt, 377 U.S. 360, 375 (1964), andSmelt v. Cnty. of Orange, 447 F.3d 673, 678 (9thCir. 2006)[)].

Pullman abstention is warranted if threeconditions are satisfied: “(1) the federalplaintiff’s complaint requires resolution of asensitive question of federal constitutional law;(2) the constitutional question could be mooted ornarrowed by a definitive ruling on the state lawissues; and (3) the possibly determinative issueof state law is unclear.” Potrero Hills Landfill,657 F.3d at 888 (quoting Spoklie v. Montana, 411F.3d 1051, 1055 (9th Cir. 2005)). . . .

Bridge Aina Leà, LLC v. Haw. Land Use Comm’n, Civil No. 11–00414

SOM–BMK, 2012 WL 1109046, at *3 (D. Hawaiì Mar. 30, 2012) (some

alterations in Bridge Aina Leà).

Count I seeks, inter alia, a declaration that Section

3.19 and Ordinance No. 912 are unconstitutional on their face and

deprived KBV of its right to substantive due process. [Complaint

at ¶¶ 135-36.] Count II seeks, inter alia, a declaration that

Section 3.19 and Ordinance No. 912 are invalid on their face

because they violate Haw. Rev. Stat. § 46-4, and Count III seeks,

inter alia, a declaration that Section 3.19 and Ordinance No. 912

are invalid on their face because Section 3.19 was adopted

pursuant to a process that violated Charter § 22.07.D. [Id. at

¶¶ 150, 159.] To the extent that all three counts seek a


33

declaration that Section 3.19 and Ordinance No. 912 are invalid,

the second condition is met - the constitutional questions in

Count I could be narrowed by a ruling on Counts II and III.

It is a close question whether the federal

constitutional issues in Count I are particularly “sensitive”,

but, even assuming, arguendo, that they are sensitive issues and

that the first condition is satisfied, the third condition is not

satisfied. In this Court’s view, the applicable Hawaiì law,

including Haw. Rev. Stat. § 46-4 and Charter § 22.07.D., that is

relevant to the possibly determinative issues in Counts II and

III is clear. Although Kaiser Hawaii Kai, the seminal case

relevant to Count II, presented a different factual scenario than

the instant case, the legal principles set forth in Kaiser Hawaii

Kai are clear, and this Court is capable of applying those

principles to the facts of the instant case, where appropriate.

This Court therefore CONCLUDES, in the exercise of its

discretion, that Pullman abstention is not warranted in this

case.

For the same reasons, this Court also declines to

certify questions regarding Counts II and III to the Hawaiì

Supreme Court. See Villon v. Marriott Hotel Servs., Inc., Civil

No. 08–00529 LEK–RLP, 2011 WL 4047373, at *6 (D. Hawaiì Sept. 8,

2011) (“This court may certify a question to the Hawaii Supreme

Court when it concerns law of Hawaii that is determinative of the


34

cause and . . . there is no clear controlling precedent in the

Hawaii judicial decisions . . . . The court, however, should not

certify questions when the answer is reasonably clear and the

court can, using its best judgment, predict how the Hawaiì

Supreme Court would decide the issue.” (alterations in Villon)

(citations and internal quotation marks omitted)). This Court

now turns to the merits of the KBV Motion and the Counter Motion.

III. Count II - Violation of Haw. Rev. Stat. § 46-4

The Hawaiì Supreme Court has stated, “it is

fundamental that authority to zone is conferred by the

legislature on the counties.” Save Sunset Beach Coal. v. City &

Cnty. of Honolulu, 102 Hawaiì 465, 481, 78 P.3d 1, 17 (2003).

The counties’ authority to zone comes from Haw. Rev. Stat. § 46-

4, which is known as the “Zoning Enabling Act”. See, e.g., Kauai

Springs, Inc. v. Planning Comm’n of Cnty. of Kauai, No. 29440,

2013 WL 1829587, at *19 (Hawaiì Ct. App. Apr. 30, 2013) (citing

Kauaì County Code, Chapter 8, The Comprehensive Zoning Ordinance

for the County of Kauai); Kaiser Hawaii Kai Dev. Co. v. City &

Cnty. of Honolulu, 70 Haw. 480, 483, 777 P.2d 244, 246 (1989)

(“The counties of our state derive their zoning powers from HRS

§ 46–4(a) . . . referred to as the Zoning Enabling Act.”). The

Hawaiì Intermediate Court of Appeals has stated: “In sum, HRS

§ 46–4, inter alia, confers authority upon each county to zone,

to adopt a comprehensive general plan to guide the overall future


35

development of the county, and to exercise the zoning power by

ordinance.” Kauai Springs, 2013 WL 1829587, at *20.

Section 46-4(a) states, in pertinent part:

Zoning in all counties shall be accomplishedwithin the framework of a long-range,comprehensive general plan prepared or beingprepared to guide the overall future developmentof the county. Zoning shall be one of the toolsavailable to the county to put the general planinto effect in an orderly manner. Zoning in thecounties of Hawaii, Maui, and Kauai means theestablishment of districts of such number, shape,and area, and the adoption of regulations for eachdistrict to carry out the purposes of thissection. In establishing or regulating thedistricts, full consideration shall be given toall available data as to soil classification andphysical use capabilities of the land to allow andencourage the most beneficial use of the landconsonant with good zoning practices. The zoningpower granted herein shall be exercised byordinance which may relate to:

(1) The areas within which agriculture,forestry, industry, trade, and business maybe conducted;

. . . .

(4) The areas in which particular uses may besubjected to special restrictions;

(5) The location of buildings and structuresdesigned for specific uses and designation ofuses for which buildings and structures maynot be used or altered;

(6) The location, height, bulk, number ofstories, and size of buildings and otherstructures;

(7) The location of roads, schools, andrecreation areas;


36

(8) Building setback lines and future streetlines;

(9) The density and distribution ofpopulation;

. . . .

(12) Other regulations the boards or citycouncil find necessary and proper to permitand encourage the orderly development of landresources within their jurisdictions.

The council of any county shall prescribe rules,regulations, and administrative procedures andprovide personnel it finds necessary to enforcethis section and any ordinance enacted inaccordance with this section. . . .

. . . .

The powers granted herein shall be liberallyconstrued in favor of the county exercising them,and in such a manner as to promote the orderlydevelopment of each county or city and county inaccordance with a long-range, comprehensivegeneral plan to ensure the greatest benefit forthe State as a whole. This section shall not beconstrued to limit or repeal any powers of anycounty to achieve these ends through zoning andbuilding regulations, except insofar as forest andwater reserve zones are concerned and as providedin subsections (c) and (d).

(Emphases added.)

Section 3.19 creates the TAU classification and vests

the authority “to process and to issue any zoning, use,

subdivision, or variance permit for more than one” TAU with the

Council. Section 3.19.A. It also sets forth the approval

process required for the development of any project with more

than one TAU. Section 3.19.B. Thus, Section 3.19 relates to


37

special restrictions on particular uses of property and the

location of buildings for use as TAUs. It also states that the

Council may give authority over TAU permits to the Planning

Commission, if the Council enacts a growth rate ordinance.

Section 3.19.C. Thus, Section 3.19 also relates to population

density and distribution. Although the powers granted to the

counties in § 46-4 are liberally construed in favor of the

counties’ exercise of those powers, Section 3.19 clearly relates

to the counties’ zoning powers granted in Haw. Rev. Stat. § 46-4.

Haw. Rev. Stat. § 46-4 requires that counties exercise

their zoning powers “by ordinance”. The County, however, adopted

Section 3.19 through voter initiative. The Hawai`i Supreme Court

has stated that, “[i]n view of legislative history, it is

abundantly clear that the legislature in its wisdom established a

public policy of not effectuating land use zoning through the

initiative process.” Kaiser Hawaii Kai, 70 Haw. at 483, 777 P.2d

at 246; see also id. at 483 n.1, 777 P.2d at 246 n.1 (stating

that, generally “‘zoning by initiative’, or such similar

terminology, refers to amendments to both the detailed county

development plans and zoning maps effected through the initiative

process”). Further,

Zoning by initiative is inconsistent with thegoal of long range comprehensive planning, and“[i]t seems unlikely that the Legislature intendedthe possible frustration of comprehensive zoningthrough the initiative process.” Smith v.Township of Livington, 106 N.J. Super. 444, 457,


38

256 A.2d 85, 92 (1969).

In Township of Sparta v. Spillane, 125 N.J.Super. 519, 525–526, 312 A.2d 154, 157 (1973), aNew Jersey Superior Court stated:

Zoning is intended to be accomplished inaccordance with a comprehensive plan andshould reflect both present and prospectiveneeds of the community. [] Among otherthings, the social, economic, and physicalcharacteristics of the community should beconsidered. The achievement of these goalsmight well be jeopardized by piecemealattacks on the zoning ordinances if referendawere permissible for review of any amendment. Sporadic attacks on a municipality’scomprehensive plan would tend to fragmentzoning without any overriding concept. Thatconcept should not be discarded becauseplanning boards and governing bodies may notalways have acted in the best interest of thepublic and may not, in every case, havedemonstrated the expertise which they mightbe expected to develop. (Citations omitted.)

Similarly, the Washington Supreme Courtstated in Leonard v. City of Bothell, 87 Wash. 2d847, 852, 557 P.2d 1306, 1309–1310 (1976) (quotingKelley v. John, 162 Neb. 319, 323–324, 75 N.W.2d713, 716 (1956)):

The uniformity required in the properadministration of a zoning ordinance could bewholly destroyed by referendum. A singledecision by the electors by referendum couldwell destroy the very purpose of zoning wheresuch decision was in conflict with thegeneral scheme fixing the uses of property indesignated areas. . . . It would permit theelectors by referendum to change, delay, anddefeat the real purposes of the comprehensivezoning ordinance by creating the chaoticsituation such ordinance was designed toprevent.


39

We are cognizant that both Spillane andLeonard involved referenda. Nevertheless, weagree with the reasoning and statements made bythe respective courts as applied to the process ofzoning by initiative.

Kaiser Hawaii Kai, 70 Haw. at 484-85, 777 P.2d at 247

(alterations in Kaiser Hawaii Kai) (emphases added).

The Hawai`i Supreme Court also stated:

Article VIII, section 2 of our stateconstitution, in pertinent part, provides:

Each political subdivision shall have thepower to frame and adopt a charter for itsown self-government within such limits andunder such procedures as may be provided bygeneral law. Such procedures, however, shallnot require the approval of a charter by alegislative body.

Charter provisions with respect to apolitical subdivision’s executive,legislative and administrative structure andorganization shall be superior to statutoryprovisions, subject to the authority of thelegislature to enact general laws allocatingand reallocating powers and functions.

Section 6 of the same article further states:

This article shall not limit the power of thelegislature to enact laws of statewideconcern.

. . . . The legislature clearly expressedconcern for orderly and coordinated developmentwithin and between the counties when it adoptedboth the Zoning Enabling Act in 1957 and theHawaii State Planning Act in 1978.

The City argues that although HRS § 46–4(a)authorizes the City to enact zoning ordinances,the manner in which such ordinances are enacted—bythe City Council or through initiative—is a matter


40

of “legislative . . . structure and organization.” Therefore, pursuant to the state constitution,state statutes which dictate the process by whichzoning ordinances are enacted are not superior tocharter provisions which permit initiative. Wedisagree.

The thrust of HRS § 46–4(a) is not to dictatethe manner in which zoning ordinances arepromulgated, but to assure that, however enacted,those ordinances comport with that long-rangegeneral plan, “and to insure the greatest benefitfor the State as a whole.” Id. We hold,therefore, that HRS § 46–4(a) does not relate tothe City’s “executive, legislative andadministrative structure and organization.” Consequently, the statute is superior to theCharter’s provision and, for the reason that it isinconsistent with the purpose of HRS § 46–4(a),zoning by initiative is impermissible.

Id. at 488, 777 P.2d at 249-50 (some alterations in Kaiser Hawaii

Kai) (emphases added).

Defendants argue that Kaiser Hawaii Kai is inapplicable

to the instant case because the initiative in Kaiser Hawaii Kai

attempted to amend the zoning designation of a specific tract of

land from residential to preservation, and Section 3.19

established a process that applies generally, not just to one

property. See Kaiser Hawaii Kai, 70 Haw. at 482, 777 P.2d at

246. Defendants also argue that Kaiser Hawaii Kai is

inapplicable because Section 3.19 and Ordinance No. 912 merely

constitute a permissible shift of authority within the County’s

executive, legislative, and administrative structure.


41

First, although the facts of Kaiser Hawaii Kai are

distinguishable from the facts of the instant case, nothing in

Kaiser Hawaii Kai indicates that the legal principles which the

Hawai`i Supreme Court articulated in that case are limited to

initiatives to change the zoning of specific tracts of land. The

legal principles in Kaiser Hawaii Kai are clear, and they are

equally applicable to other instances in which counties attempt

to legislate zoning issues through voter initiative. This Court

also rejects Defendants’ argument that Section 3.19 and Ordinance

No. 912 merely enacted a permissible shift of internal authority

within the County. Section 3.19 and Ordinance No. 912 created a

land use classification that did not previously exist, and they

established the process developers must follow in order to use

their land within that classification. Section 3.19 and

Ordinance No. 912 did not merely shift authority over a

classification and process that already existed. This Court

therefore CONCLUDES that Section 3.19 was an improper zoning

initiative and, pursuant to Kaiser Hawaii Kai and Haw. Rev. Stat.

§ 46-4(a), Section 3.19 is invalid.

A. Severability

Defendants note that Section 3.19 contains a

severability clause, section E. See supra pg. x. Defendants

argue that, if this Court strikes the growth rate standard in

section B., the delegation of authority over the TAU process to


42

the Council would remain in full force and effect. [Counter

Motion at 28.] This Court, however, has not ruled that Section

3.19.B. is invalid because of the growth rate provision; this

Court has ruled that Section 3.19 is invalid as a whole because

it is improper zoning by initiative. See KBV CSOF No. 15

(stating that Section 3.19 is substantively identical to the

amendment that CRG proposed in its petition). Thus, no portion

of Section 3.19 survives this Court’s ruling.

Defendants also argued at the hearing on the KBV Motion

and the Counter Motion that, even if this Court invalidated

Section 3.19 on the ground that it was improper zoning by

initiative, the TAU process would survive because Ordinance No.

912 is a valid exercise of the County’s zoning powers by

ordinance. This Court disagrees. The Council enacted Ordinance

No. 912 to implement Section 3.19. See Ordinance No. 912, § 2

(“The Council further finds that it would be more efficient and

appropriate if the Planning Commission were authorized by

ordinance to implement Charter Section 3.19.”). Insofar as

Section 3.19 is invalid, this Court also CONCLUDES that Ordinance

No. 912 is also invalid.

This Court therefore GRANTS the KBV Motion as to Count

II and DENIES the Counter Motion as to Count II. This Court

emphasizes that, in ruling that Section 3.19 and Ordinance No.

912 are invalid, this Court expresses no opinion as to whether


43

the TAU classification and permitting process are well thought

out or whether they are in the best interests of the County and

its people. Those questions are not for this Court to decide.

IV. Count III - Violation of County Charter § 22.07.D.

Count III seeks a declaratory judgment that Section

3.19 and Ordinance No. 912 are invalid because the County failed

to provide an objective summary of the Proposed Amendment in the

2008 election, in violation of County Charter § 22.07.D.

Defendants argue that they are entitled to summary judgment as to

Count III because: the laches doctrine bars KBV’s challenge to

the election materials for the Proposed Amendment; § 22.07 is

inapplicable because it does not apply to Charter amendments; and

the Election Guide was a fair description of the Proposed

Amendment.

Section 22.07, titled “County Council Action on

Petitions” states, in pertinent part:

A. The county council shall proceedimmediately to consider an initiative orreferendum petition which has been determinedsufficient in accordance with the provisions ofthis article. If an initiative petition isconcerned, the ordinance it proposes shall at oncebe introduced subject to the procedures requiredfor ordinances under Article IV of this charter;however, not more than sixty (60) days shallelapse between the time of first reading of theinitiative proposal as a bill and completion ofaction to adopt, amend, or reject the same. . . .

B. If the council rejects an initiativeamendment proposal or passes it with an amendmentunacceptable to a majority of the petitioner’s


9 The version of Section 24.01 in effect in 2008 stated:

Amendments to this charter may be initiated onlyin the following manner:

A. By resolution of the council adoptedafter two readings on separate days and passed bya vote of five or more members of the council.

B. By petition presented to the council,signed by not less than five percent (5%) of thevoters registered in the last general election,setting forth the proposed amendments. Such

(continued...)

44

committee, or if the council fails to repeal anordinance reconsidered pursuant to a referendumpetition, it shall submit the originally proposedinitiative ordinance or refer the reconsideredordinance concerned to the voters of the county atthe next general election.

. . . .

D. The ballot for such measures shallcontain an objective summary of the substance ofthe measure and shall have below the ballot titledesignated spaces in which to mark a ballot FOR orAGAINST the measure. Copies of initiative orreferendum ordinances shall also be made availableat the polls.

. . . .

(Emphases added.) Thus, Section 22.07 clearly addresses

initiatives and referenda petitions regarding County ordinances;

it does not address initiatives and referenda petitions regarding

the County Charter.

County Charter Article XXIV addresses Charter

amendments. Section 24.01 sets forth the process to initiate a

Charter amendment,9 and Section 24.02 addresses voting on


9(...continued)petitions shall designate and authorize not lessthan three nor more than five of the signersthereto to approve any alteration or change in theform or language or any restatement of the text ofthe proposed amendments which may be made by thecounty attorney.

Upon filing of such petition with the council, thecounty clerk shall examine it to see whether itcontains a sufficient number of apparently genuinesignatures of voters.

45

proposed amendments. Section 24.02, titled “Elections to be

Called[,]” states:

A. Any resolution of the council or petitionof the voters proposing amendments to the chartershall provide that the proposed amendments shallbe submitted to the voters of the county at thenext general election.

B. The county clerk shall have the proposedamendments published in a newspaper of generalcirculation in the county at least thirty (30)days prior to submission of the proposedamendments to the voters of the county at the nextgeneral election.

C. Should the majority of the voters votingthereon approve the proposed amendments to thischarter, the amendments shall become effective atthe time fixed in the amendment, or, if no time isfixed therein, thirty (30) days after its adoptionby the voters of the county. Any charteramendment shall be published in a newspaper ofgeneral circulation in the county within thirty(30) days of the effective date of such amendment.

Section 24.02 does not contain a requirement similar to the

“objective summary” requirement in Section 22.07. Thus, to the

extent Count III alleges that Section 3.19 and Ordinance No. 912

are invalid because the County failed to comply with Charter


46

§ 22.07.D. in presenting the Proposed Amendment in the 2008

election, Count III fails as a matter of law because § 22.07.D.

does not apply to initiatives proposing amendments to the County

Charter.

KBV also argues that the same standard for the

enactment of County ordinances proposed by initiatives should

apply to County Charter amendments proposed by initiatives.

[Complaint at ¶ 153 (“Voters are entitled to an accurate

description of the form and content of all ballot measures.”);

KBV Reply at 23 (“It is absurd to suggest that the description of

amendments to the ‘local constitution,’ require less objectivity

than the description of proposed ordinances.” (quoting Creighton

v. City of Santa Monica, 207 Cal. Rptr. 78, 82 (Cal. Ct. App.

1984))).] In the KBV Motion, KBV argues that “[a]s a rule, a

ballot question ‘must neither mislead nor advocate a position,

but must simply state [the] question clearly.’” [Mem. in Supp.

of KBV Motion at 29 (quoting Thirty Voters of the County of

Kaua`i v. Doi, 61 Haw. 179, 182-83, 599 P.2d 286, 289 (1979) (per

curiam)).] Thirty Voters v. Doi, however, dealt with a ballot

initiative to amend the County Comprehensive Zoning Ordinance.

61 Haw. at 180, 599 P.2d at 287-88. Further, it dealt with a

specific requirement in “Section 1.07D of the initiative and

referendum article of the Kauai County Charter” that stated,

“[t]he ballot for such measure shall contain an objective summary


47

of the substance of the measure . . . .” Id. at 182-83, 599 P.2d

at 289. Thus, Thirty Voters v. Doi did not announce a general

rule applicable to all ballot questions, nor does it support

KBV’s position that the § 22.07.D. “objective summary”

requirement applies to all ballot questions. Neither KBV nor

this Court has identified any case law extending Thirty Voters v.

Doi to all ballot questions in general or specifically to ballot

questions presenting proposed Charter amendments.

Although KBV presents a logical argument that ballot

materials describing a proposed Charter amendment should contain

an objective summary and should neither mislead nor advocate a

position, the courts are not in a position to create such a

requirement. This Court therefore CONCLUDES that Count III fails

as a matter of law. In light of this Court’s ruling, this Court

need not address either Defendants’ laches argument or the

question of whether the voter materials describing the Proposed

Amendment were misleading. This Court DENIES the KBV Motion as

to Count III and GRANTS the Counter Motion as to Count III.

CONCLUSION

On the basis of the foregoing, KBV’s Motion for Summary

Judgment on Counts II and III of the Complaint, filed March 1,

2013, and Defendants’ Counter Motion for Summary Judgment on

Counts II and III, filed May 6, 2013, are HEREBY GRANTED IN PART

AND DENIED IN PART. The KBV Motion is GRANTED as to Count II and


48

DENIED as to Count III, and the Counter Motion is GRANTED as to

Count III and DENIED as to Count II.

This Court expresses no opinion and makes no ruling as

to Count I.

IT IS SO ORDERED.

DATED AT HONOLULU, HAWAII, June 28, 2013.

/S/ Leslie E. Kobayashi Leslie E. KobayashiUnited States District Judge

KAUAI BEACH VILLAS - PHASE II, LLC V. COUNTY OF KAUA’I, ET AL;CIVIL NO. 12-00483 LEK-RLP; ORDER GRANTING IN PART AND DENYING INPART PLAINTIFF’S MOTION FOR SUMMARY JUDGMENT ON COUNTS II AND IIIOF THE COMPLAINT AND GRANTING IN PART AND DENYING IN PARTDEFENDANTS’ COUNTER MOTION FOR SUMMARY JUDGMENT COUNTS II AND III


order granting in part and denying in part …feb 08, 2011 · kauai beach villas-phase ii, llc,...

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